National TVET Policy 2015

Skills for Growth & DevelopmentSkills for Growth & DevelopmentSkills for Growth & Development
ATechnical andVocational Education and Training (TVET)
Policy for Pakistan
Ministry of Federal Education and ProfessionalTraining
Government of Pakistan

SkillsforGrowth&Development
ATechnicalandVocationalEducationandTraining
(TVET)PolicyforPakistan
March2015
MinistryofFederalEducationandProfessionalTraining

This TVET Policy was developed by a Task Force,established by the Minister of Federal Education
and Professional Training.The Task Force was assisted by the TVET Reform Support Programme
which is funded by the European Union,the Embassy of the Kingdom of the Netherlands,the Federal
Republic of Germany and the Royal Norwegian Embassy and has been commissioned by the German
Federal Ministry for Economic Cooperation and Development (BMZ) and the Deutsche Gesellschaft fur
Internationale Zusammenarbeit (GIZ) GmbH.

TableofContents
Statement from the Prime Minister
H.E.Mian Mohammad Nawaz Sharif 4
Foreword by the Minister for Federal Education and Professional Training,
Hon.Eng.Muhammad Baligh ur Rehman 6
Introduction by the Chairman of the National TVET Policy Task Force,
Dr.Allah Bakhsh Malik 8
Statement by the Chairman Workers and Employers Bilateral Council of Pakistan,
Mr.Ehsanullah Khan 10
Statement by the Chairman of Nestle Pakistan Ltd,
Mr.SyedYawar Ali 11
Statement by the President FPCCI
Mian Muhammad Adrees 12
Executive Summary 14
The Agenda For Change: Pakistan’s TVET Policy 20
• Objectives
• Rationale
• Current arrangements are inadequate to meet the challenges
• Acheiveing the policy objectives
• Implementation measures
• A national qualification,assessment and certification system
• An invitation to the private sector to enter a partnership to build the country’s skills
• Continuing and accelerating reform
• Collaboration across all government sectors
• TVET and General Education
• Governance and Intitutional Structres of TVET
• A New TVET Landscape
• Funding and finance
• A new legislative framework
The Implementation Plan 38
Annex 1: National TVET Policy Task Force: Its Membership and Terms of Reference 47
Annex 2: Skills and The Economic and Social Development of Pakistan:
Why Skills Development is Important 50
Annex 3: The Current Status of TVET 59
Annex 4: Skills Development – The Key Issues 71
Annex 5: The New TVET Landscape 79
Annex 6: National Skills Fund 80
Annex 7: Outline Of Proposed Comprehensive Legislation 85

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Although rich in natural resources.Pakistan’s greatest asset is its human social capital.We
need to do more to equip young people,those in jobs and those seeking work with the skills
to contribute to the country’s economy,to contribute to their communities and to foster
individual talent.
This National Policy for Technical andVocational Education and Training (TVET),sets out
– for the first time in our country’s history – the commitment to invest in the development
of skills that are necessary in our fast-changing and transforming global economy.The
Government is committed to increasing access to,and the quality of,basic education.We
are improving higher education provision.But as this TVET Policy Document demonstrates
so clearly,as a nation we must build the skills that are necessary to make the country more
efficient and competitive,both at home and overseas.The Government of Pakistan has stoic
resolve and commitment to ensure the implementation of the TVET policy,encouraging
technical and vocational education for national and international labour markets.
Our ambitions for Pakistan are described inVision 2025.The first pillar of this overarching
economic and social development strategy is building our human capital.This TVET Policy
recognises and gives appropriate emphasis to a component of education and training that
has been too long neglected in our country.A fresh start is incessant to improve Pakistan’s
international competitiveness; benefit from our growing young population; seize the
opportunities of an expanding international labour market and challenge individuals in the
formal and informal sectors of our economy to hone their skills and seek advancement.
TVET Reforms are being introduced in many countries around the world.The introduction of
change is never easy and in Pakistan we shall have to confront a number of challenges.These
include building partnerships between public and private sectors,based on trust and common
goals,mobilising resources,establishing public confidence in an area of education and training
that has been viewed as an inferior option and introducing different ways of doing things in a
culture that tends to defend the status quo.
The Task Force that developed the National TVET Policy has recognised,quite rightly,that
transforming our country’s skills is not a job for the Government alone.Government and
employers have a mutual interest to secure a more competent and confident work force that
can meet the demands of increasing international competition.The Government is eager to
develop a joint approach – to work in partnership with the private sector – to ensure that the
skills for economic growth and social development are identified and put in place.The efforts
Statement from the Prime Minister
H.E.MianMohammadNawazSharif

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and hard work put in by the task force,set up by the Minister of State for Federal Education
and Professional training,is appreciable.
It is clear that there is much to do to improve the country’s skills.Our international
competitors have treated this issue with more seriousness and focus; skills development is a
neglected area in Pakistan and there are significant challenges to address.This TVET Policy
sets out a‘road map’for change,but concerted and sustained action will be required to secure
quality training and to create new opportunities for workers and for young people.It will take
time to establish the programmes and systems that are needed.Already we lag behind other
countries that are continuously improving and reinvigorating their skills development polices.
Urgent action is required for which me and my Government stands committed.This policy
signals a new approach to skills development and the sentiments of the Father of the Nation
are salutary: Failure is a word unknown to me.

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In June 2014,we established a Task Force to prepare a National TVET Policy.I had cogent
reasons to do that,keeping in context the emerging needs for a skilled labour force at national
and international levels.
First,there was no accepted vision about the future of skills development,around which
government,employers and workers could unite.Second,given the demography of the country
and the increasing numbers of young people who will join the labour market,the scale and
efficiency of technical education and training required review,including consideration of who
should be responsible for creating new and expanded provision.Third,the pace of reform of
publicly-funded TVET,which was introduced with the adoption of the National Skills Strategy
in 2009,has not been sufficiently robust,complicated by legislation and structures that have
not encouraged national/provincial collaboration to the extent required.Finally,there are
continuing concerns about the quality of technical education and training and the extent to
which this is truly demand-led,and is meeting the needs of our economy.
The Task Force has fulfilled its remit and has presented the first National TVET Policy.I
should like to pay tribute to the Task Force,its Chairman and members,for the work that has
been completed.I welcome the analysis and the recommendations that have been made.The
Task Force has worked quickly and efficiently and completed its deliberations in six months.
I should like to thank as well,the Support to TVET Reform Programme,which funded the
Task Force,its meetings and consultation exercise and which provided a small technical and
administrative team to provide practical assistance.
The National TVET Policy sets out an ambitious agenda and highlights related policy areas
that still require further work.
The Government believes that increased attention to,and investment in,skills development is a
national priority.It hopes that all TVET stakeholders will share this view,including the private
sector and education and training providers.
My Ministry is now committed to the implementation of the policy.This requires the
introduction of new activities and structures,the adoption of a fresh way of working,based on
collaboration and the creation of partnerships and the identification of additional resources,
both personnel and financial.My promise is that implementation will proceed as quickly as
possible and that every effort will be made to achieve the milestones that are defined in the
TVET Policy.
Foreword by the Minister of State for Federal Education
and ProfessionalTraining
Hon.Eng.MuhammadBalighur

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This is a national policy that will affect training delivered in all parts of the country.Successful
implementation will demand a national effect by Federal and Provincial Governments
and their agencies and by other stakeholders.We hope,too,that international donors will
appreciate the relevance of TVET to our economic and social development,and will continue
their support and technical assistance.
It is my pleasant duty to place on record my appreciation for the hard work and the timely
accomplishment of the assignment by the Task Force for TVET Policy headed by Dr.Allah
Bakhsh Malik.I am cognizant of the practical assistance that has been provided by the TVET
Reform Support Programme and its team of technical advisers and I appreciate their hard
work.

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The Ministry of Federal Education and Professional Training prepares and develops policy
proposals to train the work-force to meet national and international standards for skilled
labour along with other objectives.
The publication of the TVTE policy is a step forward.It provides a national framework for the
design,quality assurance,assessment,and certification of qualifications in which the Federal
and Provincial Governments and their agencies can work together to produce the required 21st
century skills.
The Ministry welcomes the implementation plan,included in the policy statement.Any
policy is only good as its implementation.The policy sets clear implementation priorities and
milestones against which progress can be measured.
The national TVET Policy stresses,the need for all government ministries and agencies to
work closely.This is to ensure that training provision is in line; with macro-economic and
social development policies and that skills are available to implement infrastructure projects.
Training,wherever provided,should be based on competency standards and aligned to the
National Qualifications Framework.The Ministry is committed to develop collaborative
working through cooperation of other ministries and agencies to develop national approach to
TVET.
I wish all concerned success in their endeavours.
Message by the Federal Secretary, Ministry of Federal
Education and ProfessionalTraining,
Government of Pakistan
Mr.MuhammadAhsanRaja

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Introduction by the Additional Secretary of the Ministry of
Federal Education and ProfessionalTraining, and
the Chairman of the NationalTVET PolicyTask Force
Dr.AllahBakhshMalikPhD PAS, UNESCO Confucius Laureate
The National TVET Policy that is presented reflects the unanimous views of the members of
the Task Force.They represent a broad range of national and provincial interests,from the
public and private sectors and the education and training community.I place on record my
thanks to them for their participation and expressions of views and to all those who attended
our consultation meetings or who commented on the draft policy.I should like to acknowledge
too the contribution made by our administrative and technical support team who assisted the
Task Force in a most professional manner.
The National TVET Policy that is presented is based on a careful and critical review of the
current state of training provision and the demands and challenges of our transforming
economy and growing youthful population.The TVET sector is complex and nuanced,with
good practice in both public and private sectors.But the private sector needs to train more and
performance by publicly-funded agencies and institutions must be improved.
The Task Force readily and unanimously agreed on a number of key issues.These include
the need for expansion of provision and a greater role for the private sector; the creation
of a national quality assured qualification system,with a common approach to assessment
and a single certification arrangement; that national standards are derived in a collaborative
way,with provinces responsible for implementation and the continuing reform of public
sector TVET provision.The importance of developing a new approach to planning and
implementation was also agreed.This involves partnership working and greater emphasis on
performance,accountability and evidence-based decision-making.
There are a number of new functions that must be introduced and additional skills that will
be required to implement the TVET Policy.The Task Force debated extensively the arguments
for and against the establishment of new organisations to be responsible for discharging new
functions,as against existing bodies taking them forward.On balance,it was agreed that new
structures,independent of government,would be most appropriate.
The TVET Policy defines a number of numerical targets,against which progress can be
assessed.A major policy goal is to change attitudes towards monitoring and evaluation and to
place more emphasis on performance and the outcomes of investment.
It has been a great pleasure working with our team of technical advisers,Dr.Julie Reviere,
Mr Per Borjegren,Mr Qazi Farid Ahmed,Mr Mike Hanson and Mr Peter Hannigan - their

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professionalism and indomitable belief in workmanship is highly appreciated.With their
international exposure and experience; their contribution is huge and worthy of recognition.I
am sure that this will go a long way to promote skills development for the amelioration of the
people of Pakistan,ultimately helping them to decent livelihoods and to get out of the vicious
circle of poverty.
The publication of the National TVET Policy marks the completion of one stage of work,but it
begins the major task of implementation.Some reforms can be introduced relatively quickly,
but the journey which now begins will be a long one.It will require sustained oversight and
the enthusiasm and commitment to review progress constantly and to take remedial action to
address any emerging problems.In this,we can take inspiration and comfort from the words
of the Qur’an,God is with those who persevere.

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Statement by the ChairmanWorkers and Employers Bilateral
Council of Pakistan (WEBCOP)
Mr.EhsanullahKhan
In 1947,when Pakistan was born,it had only about four per cent of the industrial capacity
of the sub-continent.Impressive progress has been made to build factories,introduce new
industry and commerce to enable the country to compete in world markets.The achievements
in creating Pakistan’s industrial and commercial base cannot be under-estimated,but there
are daunting challenges ahead.Globalization is creating more international competition.Our
industry must be productive and efficient it is to expand in world markets.Unfortunately
Pakistan now ranks 129th out of 144 countries in the 2015 Global Competiveness table
and our share of world exports has fallen.There are new technologies to be developed and
economic sectors that have the potential to grow.The Government has set ambitious growth
targets and we have imaginative strategies for the economy and for the modernisation of our
infrastructure.
This policy document – Skills for Growth and Development – argues that a better trained
work force is necessary if we are to achieve sustained growth rates and fulfil the vision of a
prosperous and stable society.The policy statement is clear that as a country we have paid too
little attention to vocational education and training since this is seen by too many as a‘second
rate’option and less desirable than academic education.This is not a view shared by our
competitors,who invest more in training and take issues of skills formation seriously.
I welcome the emphasis which is given in the policy to the role that employers should play
both in investing more in building the capacities of their own staff and in contributing to the
formation and implementation of national skills development policies.I welcome,too,the
recognition that employers’associations and representative organisations should support and
assist employers to appreciate the benefits of investing in training and that technical assistance
should be available to help them to fulfil this role.
The Workers and Employers Bilateral Council of Pakistan will ensure that skills development is
an issue for priority discussion by its members and that it will consider the implications of the
TVET Policy for its own work and organisation.
The systemic reform of TVET in Pakistan is a major challenge to our ingenuity,sense of
purpose and energy.But as did our predecessors nearly seven decades ago,we must accept
difficult challenges on the road of building a stronger,more cohesive and confident society.

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The Nestle Company was established some 140 years ago.It now enjoys an international
reputation for the quality of its products and its business ethics and principles – to create
shared value.The success of the company is based on its people.We seek to create a dynamic,
passionate and professional work-force.I was nominated to serve on the National TVET Policy
Task Force and I am happy to endorse and support its conclusions and the policy statement it
has prepared.
The Task Force has made a mature and measured assessment of the economic and social
challenges facing Pakistan and the inadequacy of the present training system to deliver the
skills required to contribute to addressing them.As with Nestle,the success of Pakistan will
be based on its people – and their capacity and ability to contribute to its economic and social
development.
The implementation of the National TVET Policy requires the active involvement of employers
at various levels – national,provincial,institutional and in the determination of individual
qualifications and programmes.This is a‘Big Ask’,given the demands to maintain and expand
businesses and create jobs in an increasingly competitive world.But I am confident that the
business community will respond to the challenge of exercising an even greater role in the
development of the country’s skills if its role is meaningful,influential and genuine.I welcome
the emphasis that is given to building the capacity of employer associations and representative
bodies to assist employers to engage with training issues and the commitment of the
Government to review current apprenticeship legislation and the incentives and penalties to
which enterprises are subject.
The challenges and opportunities to build a more skilled work-force are clear and addressing
them requires sustained leadership and a realistic assessment of resource requirements.
There are examples of good practice in the private sector that should influence the design and
organisation of training and undoubtedly there is scope for greater private TVET provision.
As the Policy states,the potential benefits to the country in terms of competitiveness and the
generation of wealth are considerable if we train our young people.The consequences of not
making this investment are grave.
I commend the National TVET Policy to my colleagues in the business community since
investment in training will help them directly and support the creation of the social climate to
enable business to flourish.
StatementbytheChairmanofNestlePakistanLtd
Mr.SyedYawarAli

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StatementbythePresidentFederationofPakistanChambers
ofCommerceandIndustry
Mr.MianMuhammadAdrees
Sitara Chemical Industries Ltd,of which I am Chief Executive Officer,was established
over forty years ago.It serves various manufacturing sectors of the national and regional
economies,including textile,Textile Printing and Processing,Sugar,Soap,petroleum and other
related industries.
By virtue of running my own business,and representation on various local,national
and international bodies,I understand that economic development and high economic
performance have direct relationship with higher productivity of the workforce for which
trained workforce in Pakistan is urgently needed.
The Federation of Pakistan Chambers of Commerce and Industry was established in 1950.
Since then it has sought to be a bridge between the business community and Government
to argue for policies that promote exports,encourage foreign investment and to stimulate
economic growth in the country.As a country we face major challenges: international trade is
more competitive; we have youth growing @3.2% per annum but jobs provision is much below.
By providing skills,we can transform this precious asset into a productive resource to support
a big push to the economy. We have rich minerals and natural resources,a strategically
significant geographical location close to some of the world’s largest markets and a tradition of
ingenuity and business acumen.
It is appreciative to note that the Government is creating enabling environment and conditions
for businesses to grow and to attract foreign investment.But we will not be successful if we
believe that economic growth and transformation can be built on notions of affordable and
enough workforce.We need more skilled manpower whereby Government and the business
community must make a greater investment to provide a competent and adaptable work force
that is able to meet the continued transformation of the economy.
2015 is declared as theYear of Economic Revival by FPCCI.Many initiatives are needed if we
are to achieve and maintain the target levels of growth, to sustain and develop our services,
infrastructure and to create employment opportunities - for those increasing numbers who
will be looking for jobs over the next three decades. I believe that the rapid implementation of
the TVET Policy is one such initiative,and it is one that the business community will support
with enthusiasm.

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ExecutiveSummary
The TVET Reform Support Programme (RSP) has been designed to implement the NSS in line
with its three objectives and twenty key interventions. The development of the National TVET
Policy has drawn on the work and experience of the TVET (RSP),which seeks to assist the
federal and provincial governments to implement the National Skills Strategy.In this context,
a number of initiatives have been supported and piloted,which in turn have influenced
the approach and design of the National TVET Policy.These include the introduction of a
new planning system adopted by NAVTTC and the TEVTAs; the design of a management
information system; capacity building throughout the public TVET system; new training
programmes for TVET teachers; a fund to stimulate innovative training and a dual-training
programme to encourage employers and TVET providers to work together.In addition,the
TVET (RSP) has promoted the introduction of competency-based training and the design of a
NationalVocational Qualifications Framework.The National TVET Policy builds on this work,
which has demonstrated how systemic reform can be taken forward.
This document consists of a Policy Statement,Implementation Plan and supporting annexes,
which consider and discuss aspects of TVET Policy in greater depth.
PolicyObjectives
The National TVET Policy is based on eight objectives.These are to:
• Secure a national commitment to the importance of skills development to achieve
sustained economic growth,to increase productivity and to provide opportunities for
people to contribute to the economy and to their communities,particularly the country’s
growing youthful population;
• Increase the number and quality of training opportunities so that in the short-term at
least one million will be trained each year.By 2025,the objective is to train 20 percent
of all school-leavers,in addition to up-skilling and re-skilling existing workers.Such
expansion will not be achieved by the public sector alone and the active engagement of the
private sector will be required;
• Introduce a national standards-based qualification,assessment and certification system;
• Design and deliver competence-based education and training programmes that
concentrate on the skills required to perform jobs;
• Forge new partnerships between the public and private sectors and to encourage
employers to train more directly and to contribute to the reform of public TVET provision;

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• Maintain and expand the export of labour by encouraging people to obtain internationally
recognised qualifications;
• Encourage linkages with the informal sector of the economy by providing people with
opportunities to gain formal qualifications;
• Continue the reform and revitalisation of the public TVET sector.
RationaleforTVETPolicy
Whilst basic education is the foundation for long-term prosperity,greater attention to TVET is
justified because:
• In an increasingly competitive world,a more highly skilled workforce is required if
national economic and social goals are to be achieved,and the decline in productivity and
exports is to be reversed;
• Over the next 35 years the working age population will double.If the youthful population
can be found decent work,national wealth will increase,but there are economic and social
costs if they are unable to find productive roles in society and their communities;
• Remittances from the six million Pakistanis who work overseas top PRs 150 billion.
The export of labour is a legitimate labour market policy and demand is likely to rise.
Increasingly importing countries will be employing only those with internationally
recognised qualifications;
• Over 70 per cent of skilled workers are trained in the informal sector,through the Ustad-
Shagird tradition and‘learning by doing’. Providing opportunities for people to gain
formal qualifications will make the informal sector more productive and will encourage
individuals to move into formal jobs.
A further factor that compels greater attention to skills development is the inadequacy of
current arrangements to meet economic and social challenges.Although comprehensive data
is lacking,the characteristics of current provision are:
• Publicly-funded provision is small,serving only some 7.3 per cent of 15-24 year olds
involved in education and training,and only 0.7 per cent of the total age group.Provision
is unequal across the country,with gender imbalances.The quality of provision is variable
and there is no agreed quality assurance policy or practice and no common system for
assessing and certifying training.Major criticisms include the failure to develop people
with the skills required by a changing labour market and structural inefficiencies;

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• A minority of private sector employers provide world-class training to their employees,
but estimates suggest that less than 10 per cent of workers receive training.Apprenticeship
legislation imposes obligations on employers of a certain size to provide training,off-set
by tax and excise concessions.There are only some 22,000 apprentices and this policy
approach has failed.Employers still need convincing of the investment value of training;
• ThereissomeprivateTVETprovision,butnotonthescaleof basicorhighereducation;currently
70percentof highereducationand40percentof schoolingisprovidedbyprivateinstitutions;
• There are non-governmental organisations that provide skills training,but there is no
comprehensive information about their work,its scale and its effectiveness.
AnIntegratedNationalTVETSystem
The development and implementation of the TVET Policy has both national and provincial
dimensions.There is a national responsibility for standards and quality assurance.The
implementation and management of the TVET systems is primarily a function of provincial
administrations.Thus in-puts are required from both federal and provincial governments.
Experience suggests that working relations between national and provincial TVET bodies need
to improve; a hierarchical approach needs to be replaced by a more collaborative and consultative
style of working.Tensions have been heightened when federal structures have provided training
directly.In the future federal bodies will not provide training directly.A new Federal Technical
andVocational TrainingAuthority (TEVTA) will be created to serve Islamabad,the Federally
Administered TribalAreas (FATA) and Gilgit Baltistan,thus giving all provinces comparable
structures and federal training facilities will be transferred to the provinces.Resources and TVET
facilities vary between the provinces and this inequality will be addressed.
Anationalqualification,assessmentandcertificationsystem
A national qualifications,assessment and certification system will be established.
Qualifications gained in different parts of the country must be comparable.The design of
qualifications and assessment processes will be quality assured and nationally accredited
certificates will provide employers with a credible statement of competences and support the
international acceptance of Pakistani qualifications.
To achieve these goals a Pakistan NationalVocational Qualifications Framework will be
created.This will provide the core standards to define an integrated national TVET system;
it will provide a framework for quality assurance; the standards will be subject to review
with foreign qualification authorities to ensure recognition and equivalency; new assessment
arrangements will allow people to be tested and certified,whatever training route they have
followed – in either the formal or informal sector – and a flexible system to support life-long
learning is provided.
The development of the NationalVocational Qualifications Framework will involve new
functions.These are best carried out independently of direct government influence – to
assure employers,learners/trainees and international qualification authorities of the integrity
and credibility of processes being followed.New skills will be required to plan,maintain
and develop theVocational Qualifications Framework.Attracting,employing and retaining
staff with the appropriate skills mix will be difficult if standard public service conditions of

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employment are used.For these reasons a Pakistan NationalVocational Qualifications and
Quality Assurance Organisation will be established by legislation.Its precise legal form and
title have yet to be determined,but it may be a Section 42 Company (Companies Act,1984).It
will be governed by a board of directors,the majority of whom will represent employers.
Aninvitationtotheprivatesectortoenterapartnershiptobuildthecountry’sskills
The expansion of training and reform of existing provision will benefit from the active
involvement of employers and the private sector,because:
• Decisions about training should involve those who create jobs and who understand at
first-hand the skills that are needed;
• They have practical experience and knowledge which should be used in the design of
competency-based programmes and their implementation.There are business skills that
could improve the management of public TVET institutions and agencies and training
facilities that enterprises could make available to support the professional development of
TVET teachers and to provide practical work experience to learners/trainees;
• A significant increase in training provision will depend on the growth of apprenticeships and
employers providing more training,directly and through the establishment of new facilities.
There are compelling reasons why employers should take skills development more seriously:
• Investment in training improves productivity and contributes to increased profitability;
• They have a vested interest in ensuring that the conditions for economic growth and for
‘doing business’are stable and robust.It is the interests of the business community,for
example,to help to provide opportunities for young people,to prevent the social unrest
that increased unemployment might foster;
• Employers have the skills and knowledge to‘make a difference’to generate new training
opportunities and to reform public TVET provision;
• Corporate social responsibility suggests that there is a contribution to be made to society
beyond immediate business concerns.
The Government,for its part,will introduce a series of measures to encourage greater
employer involvement in TVET. These will include:
• Abandoning the current‘carrot and stick’approach used by successive governments to coerce
employers to offer apprenticeships.It is accepted that the policy based on legal obligations,
mitigated by marginal incentives,has not worked.A more enabling environment is required
and Government will seek to establish an early dialogue with employer representatives to
discuss and agree how a new working relationship should be established;
• Developing a more supportive framework to encourage employers’representative bodies to
support and advise employers on training issues;
• Reviewing the scope for financial incentives to encourage employers to train more;
• Introducing legislation to safeguard the employer role in determining and implementing
TVET policy.
Legislation will be introduced to establish the Pakistan Skills Partnership.This will be a
stakeholder,employer-led body with wide functions and powers,to:
• Advise government on skills policy,priority sectors for intervention and labour market

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needs - this would include the development and maintenance of the National Skills
Information System;
• Oversee the implementation of the National Skills Strategy (NSS) and integration with
economic and social development policies and initiatives;
• Investigate funding options for TVET and undertake research into key areas for
development;
• Bring employers and TVET institutions together,including through formal bodies such as
Sector Skills Councils;
• Commission the development of competency standards and other national resources for
TVET;
• Support and enhance apprenticeships;
• Develop human resources in the TVET sector;
• Promote skills development as a route to jobs,further education and training and self-
employment and its investment benefits to employers;
• Administer the National Skills Fund; (see below)
• Support active labour market initiatives;
• Develop and support national performance monitoring of TVET,in conjunction with
federal and provincial governments.
Continuingandacceleratingreform
The reforms proposed in the National Skills Strategy (2009) will be continued and accelerated
and progress will be monitored by the Pakistan Skills Partnership. In the interim until this is
established the Task Force established to develop the TVET Policy will undertake this role.
Collaborationacrossallgovernmentdepartments
If TVETistocontributetotheachievementof industrialandeconomicstrategiesandif thePakistan
NationalVocationalQualificationsFrameworkistoapplytoalltraining,greatercollaborationand
cooperationwillberequiredacrossandbetweenministriesandgovernmentagencies.TheMinistry
of FederalEducationandProfessionalTrainingwillberesponsibleforinitiatingandmaintaining
dialoguesatnationallevel.Suchacoordinationandfacilitationrolemightbeafunctionof the
TEVTAs,butitwillbeforeachprovincetodetermineitsownarrangements.
TVETandGeneralEducation
The feasibility of establishing Technical High Schools will be examined in pilot activities to be
introduced by the Ministry of Federal Education and Professional Training.
GovernanceandInstitutionalStructuresofTVET
The determination of the most appropriate governance structures for TVET should be based
on the following principles:
• The allocation of appropriate responsibilities and functions: these should be clear and
unambiguous and avoid duplication and overlap;
• Accountability – individuals should be responsible for their decisions and performance;
• Autonomy and devolution: the operational goal to be achieved is that decisions are made,
and activities managed,at the closest practical level to where implementation happens;
• Collaboration and achieving synergy;
• Avoidance of conflict: regulatory bodies should not be training provider organisations.

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The structures that will be required to undertake new functions will have implications for
current federal and national bodies,the functions and responsibilities of which will be realigned
to enable them to contribute to the implementation of the TVET policy.
Apart from the creation of a Federal TEVTA,no specific proposals are made about provincial
structures.The introduction of the NationalVocational Qualifications Framework will affect
the ways in which TEVTAs and provincial administrations currently operate,and they too will
have new functions.Provincial Governments will have opportunities to review their TVET
organisation,and in the drafting of new national legislation – in which the provinces will play a
part – it is hoped that a coherent set of‘fit for purpose’structures will be established.
FundingandFinance
The current funding system is characterised by its short-term nature and a lack of certainty
about the levels and timing of transfer payments.Public investment is low – by international
standards and having regard to the national challenges to be addressed – and the bulk of recurrent
expenditure is consumed by staff costs.The scope for raising additional income in the short-term–
for example by raising fees or setting up production units in training centres –is limited and an
adjustment in the way fees are levied would require the creation of loan and bursary funds to assist
the poor.In the medium-term there is scope to increase income from assessment fees.
TVET funding policies in a number of countries have been studied – including levy and grant
systems – but the conditions do not yet exist to enable radical new funding approaches to be
adopted.The Pakistan Skills Partnership will be charged to prepare funding options based on
the following four principles:
• Funding should include performance criteria,with incentives and penalties;
• Funding should enable students/trainees from different backgrounds to access programmes
equally;
• Funding to be adequate to enable the TVET Policy to be implemented and sustainable to
support continuous improvements;
• Publicly-provided TVET funds to be available to public and private providers on a
competitive basis,with annual increases in the proportion of funds allocated competitively.
In order to begin implementation of the TVET Policy and to demonstrate its commitment to
reform,the Government will:
• Introduce a separate,ear-marked TVET budget;
• Commit to increasing this budget,provided that progress can be demonstrated;
• Establish a National Skills Fund,with any legal and able organization to bid for funds to
introduce innovative training to increase the numbers of people with mid-level (artisan)
skills.
The Government will also initiate discussions with international donors to seek technical and
financial assistance to support the implementation of the TVET Policy.
ANewLegislativeFramework
A comprehensive Skills Development Bill will be introduced to give effect to provisions outlined
in the TVET Policy.

20
Objectives
The objectives of the National TVET Policy are to:
• Secure a national commitment by Federal and Provincial Governments,employers,
workers and community organizations to develop the skills and talents of the people to
enable them to contribute to the generation of national wealth and to make productive
contributions to their communities.
- Skills development and investment in the country’s human capital is vital if an
economic growth target of at least seven per cent is to be achieved and sustained.Basic
education is the foundation for national economic and social development.Technical
and vocational education and training should build on this,but special attention and
focus must be given to skills development in addition to efforts to improve education,
particularly for young people looking for jobs,for those people already in work and to
improve linkages between the formal and informal sectors of the economy.
- A strong commitment is needed if industrial development and infrastructure goals are
to be attained,if opportunities provided by new technologies are to be seized and if the
challenge and opportunity of a young,growing population is to be realised.The first
pillar of Vision 2025 –Putting People First – recognizes the priority that must be given
to human capital development.Skills development is crucial to the achievement of the
national goals set out inVision 2025.
• Increase training opportunities and programmes for young people,those seeking work
and for workers already in jobs.At least one million training places,providing quality
assured,competence-based training will be made available annually.This represents a
three-fold increase on current provision.To provide more training opportunities,whilst
improving their quality,is challenging,but possible.Given the numbers of young people
who will be looking for jobs,training provision must be expanded even further,however.
The longer-term objective is to provide quality training to 20 per cent of school leavers1
by 2025,to encourage and incentivise employers to increase training opportunities for
their employees and to commit to the principle of lifelong learning.Given the significant
increase in the numbers of young people who will be looking for work,a number of
interventions will be required to assist them.These might include remedial education,
expanded micro-financing initiatives,public works programmes and other active labour
1 There are different kinds of‘school leavers’: those who complete successfully secondary education; those who drop out after primary school and those who
never complete primary schooling. Skills programmes need to be developed to meet the varying needs of the increasing numbers of young people who will
be looking for work.
TheAgendaforChange:Pakistan’sTVETPolicy

21
market measures.Skills development alone is not the solution to the demands that an
increasingly youthful population will make; it has an indispensable contribution to offer,
however.
• Introduce a national standards-based qualification,assessment and certification
system.Trainees and employers will be confident that training offered in Peshawar or
Sialkot,Karachi or Quetta,will be comparable and that qualifications will be recognized
internationally.All training providers will be accredited and certificates will be issued only
on the successful completion of a recognized training programme.
• Design and deliver competence-based education and training programmes.People will
be equipped with the skills and knowledge to obtain and perform jobs.This means they
will be tested,not just on what they know in theory,but on how well they perform on
job-related tasks.Competence-based training is being introduced in publicly-funded
TVET programmes already,but it should be the approach adopted by all government
departments and the private sector for the delivery of training.
• Forge new partnerships between the public and private sectors to develop the country’s
skills.Employers will be encouraged to increase their investment in building the skills of
their own staff and additionally providing new opportunities for young people.Currently
70 per cent of higher education and 40 per cent of schooling is provided by private
institutions. There is not a comparable engagement with TVET,and there is a greater role
for the private sector to play,by training more of their own staff and by contributing to
TVET reform more widely.
• Maintain and expand the export of labour by encouraging people to obtain internationally
recognised qualifications,through training programmes and new assessment
arrangements that will recognise and take account of prior learning and experience.
• Encourage linkages with the informal sector,by providing assessment opportunities that
recognise prior learning and experience;
• Continue the reform and revitalization of the public TVET sector. The reform agenda
will be committed to the continuous improvement of standards,the design and
implementation of demand-led programmes,the development of a client-focused culture
– for example,by addressing equity and access challenges and issues - and TVET will
be promoted as a positive route to employment,further education and training or self-
employment.Making publicly-funded TVET more efficient,professional and accountable
supports the objectives of Vision 2025.

22
Rationale
Whilst quality basic education is the foundation for Pakistan’s long term prosperity and
security,greater attention must be given to training and the development of the country’s skills
– a long neglected area of public policy.The reasons for this can be stated simply:
• Skills development is vital to the achievement of economic growth,social development,
poverty reduction and a stable and cohesive society.The economic fundamentals of the
country are strong – large and diverse resources,a young population and a favourable
location close to large regional markets.Emerging macro-economic policies are
designed to achieve sustained economic growth of at least seven percent a year.2
But
growth will depend on increasing exports; raising productivity to improve international
competitiveness; investing in energy and infrastructure; developing new technologies and
economic sectors and attracting foreign investment.A better skilled workforce will be an
asset and contribute to growth; a lack of skills will hamper and frustrate development.
Training provision must be linked,therefore,to industrial and economic policies to meet
the demands of a changing economy.
• In 1947,the population was 33 million.It is now nearly 184 million; the median age is
22 years and 60 per cent of the population is under 30 years of age.Although population
growth cannot be predicted precisely,it is likely that by 2050 the working age population
will double from its present 110 million,and the age group 15-49,which was 96 million
in 2010,will top 180 million by 2050.If this young population is in productive work,and
is trained to internationally recognised standards to enable jobs to be found overseas,
the potential benefits are considerable.Wealth will be generated through production,
trade,the provision of services,tax revenues and remittances from overseas workers.
This demographic dividend provides a unique opportunity to transform the economy.
Alternatively,there will be economic and social costs if the ambitions of young people are
not addressed.
• Estimates suggest that six million Pakistanis are working overseas and sending money
back to the country.In 2014 these remittances amounted to over PRs 150 billion,and
Pakistan is ranked in the top ten countries for the value of officially recorded remittances.
The World Bank is confident that the global migration of workers will increase,but that the
export of labour is becoming more competitive.The growth in the numbers of Pakistanis
working overseas cannot be guaranteed,therefore,and increasingly importing countries
will be looking for skilled people with internationally recognised qualifications.
• Most skills are generated in the informal sector.Introducing opportunities for individuals
trained in this way to have their skills assessed and be able to gain a certified qualification,
perhaps after some additional training,will provide greater security and status to
individual workers.This has two benefits: first it will make the informal sector more
productive and secondly it will encourage individuals to move into the formal sector.
Skillsdevelopmentmustbetreatedasapriority,because:
• In an increasingly competitive world, a more highly skilled workforce is required if
national economic and social policy goals are to be achieved, and Pakistan’s decline
2 The forecast of the HSBC Bank is that by 2050 Pakistan will jump at least 14 places in international league tables for the size of its economy.

23
in productivity and exports is to be reversed.
• There are significant benefits to be gained if the country’s young population can
find decent work and costs if young people cannot play a productive role in their
communities and in society.
• The export of labour is a positive labour market policy. Increasingly importing
nations will want workers with internationally recognised qualifications and
Pakistan faces competition from countries that are investing in skills development.
• A more productive informal sector will add to the country’s wealth and access to
assessment and certification will encourage job growth in the formal sector.
(Annex 2 provides a more detailed discussion of the reasons why skills
development is so important to Pakistan.)
Currentarrangementsareinadequatetomeetthechallenges
There is no comprehensive data about skills development in Pakistan; even information about
publicly-funded provision is not systematically collated and analysed.There is no formal and
comprehensive census of TVET activity that includes the public and private sectors and the
work of non-governmental organisations.
However,the principal characteristics of current skills development in Pakistan are:
• Publicly-funded provision is small,serving only some 7.3 per cent of people aged between
15-24 who are involved in education and training and only 0.7 per cent of this total age
group.Access to training is uneven across the country and there are gender imbalances.
The quality of provision is variable,with no agreed quality assurance policy and practice.
There is little sustained evaluation of the investment in skills development,but complaints
that those completing training lack the skills that the labour market requires are common.
There is no national system to develop and validate qualifications or to certify the skills of
those who complete training programmes successfully.The efficiency of public provision,
assessed in terms of the utilisation of capacity and facilities is questionable.The major
share of recurrent expenditure,which is historically based,is devoted to staff costs,leaving
little discretion to allocate resources,provide materials used in practical training or meet
the costs of replacing out-dated equipment.Development budgets tend to be significantly
lower than the bids made for them.Although budget allocations are made,transfer
payments from national and provincial treasuries to training agencies can be irregular,
creating uncertainties and affecting adversely the efficiency of planning and delivery.
• Some private sector employers,particularly exporters and those with international links,
provide world-class training,but they are in a minority.Estimates suggest that less than 10
per cent of employed workers receive training.Government initiatives to stimulate training
in the private sector are few.Apprenticeship legislation imposes mandatory obligations on
employers of a certain size,off-set with tax and excise concessions.With only some 22,000
apprentices currently,the policy is not working.Many employers are reluctant to invest
in training because of its perceived costs.Employer representative organisations have not
yet promoted skills development as a major issue,but they lack the resources to provide
advice and guidance to employers and to exercise a leadership role.
• Training is provided by some private providers on a fee basis,but not on the scale of
private provision in basic,secondary and higher education.
• There are not-for-profit training providers,some with high reputations for the quality
of provision and their ability to place students/trainees into decent jobs,but there is no

24
comprehensive information about their numbers or effectiveness.
• Most training is provided in the informal sector,through the Ustad-Shagird tradition and
‘learning by doing’.Currently there are few mechanisms to recognise the skills acquired in
these ways to encourage workers to gain formal qualifications.
There is a range of programmes and a variety of training providers,but provision is
fragmented,of uneven quality,with poor access in some areas of the country and there are
insufficient safeguards to protect the interests of learners/trainees to guarantee the integrity of
the training that they receive.The term TVET sector is perhaps misleading.Training provision
is not based on an agreed vision or a co-ordinated and harmonious set of institutional
relationships.
The weaknesses in the scale and organisation of TVET were acknowledged in the National
Skills Strategy,which was agreed in 2009.This set out an ambitious agenda for change.
Innovations and initiatives have been introduced,many with the support of international
donors,but progress has not matched the challenges that must be addressed.
Annex 3 describes the current state of TVET in Pakistan in greater depth.
Achievingthepolicyobjectives
Five key principles will guide skills development in Pakistan in the future:
• The commitment to the development of a national integrated TVET system,with clear
national and provincial roles and responsibilities.National standards to inform the
design of qualifications and the arrangements to assess learners/trainees will be devised
collaboratively by the Federal and Provincial Governments and the private sector.A single,
national certification system will be introduced to record and recognize qualifications and
quality assurance standards and practices will be adopted.It will be a federal responsibility
to ensure that standards are developed.It will be a provincial responsibility and function to
ensure that training is provided to generate the skills that are required in the labour market
and to offer positive opportunities to individuals.
• The expansion and development of TVET is not feasible without the greater involvement
of the private sector,with employers encouraged to undertake more training directly
themselves,and to be engaged in all aspects of publicly-funded skills development;
• Sustainable funding and financing is a key driver of reform.The Government will make
additional resources available for the expansion and development of TVET,but public
money will be linked increasingly to performance measures.Ways in which the current
dependency on public funds might be diminished will be explored.The Government will
continue to seek assistance from international donors to help fund the priorities set out in
this TVET Policy;
• Reform of publicly-funded provision will continue and be accelerated,with an emphasis on
evidence-based decision-making,performance monitoring and accountability;
• More collaborative and cooperative working relationships,based on mutual trust,will be
encouraged between national and provincial TVET entities and amongst education and
training providers.A more open,transparent and genuinely consultative approach to issues
of policy and implementation will be adopted.

25
Annex 4 – Key Issues – outlines factors that have influenced the formation of the
National TVET Policy.
ImplementationMeasures
FederalandProvincialResponsibilities
There are both national and provincial dimensions to the design and implementation of
TVET programmes and the creation of an integrated skills development system.The passage
of the 18th Amendment to the Constitution may have led to a belief that the national role
and perspective was diminished.There is a national responsibility for standards and quality
assurance,for reviewing and assessing that national needs are being addressed and for
providing assistance to address market failures.The implementation and the management of
the TVET system is primarily a function of provincial administrations.
Figure 1 below describes the respective responsibilities and functions of federal and provincial
levels in a national,integrated TVET system.
Provincial role Federal role Comment and implications
Policy
• Identification of issues and input
into national policy
• Responsible for jurisdiction-based
policy, plus application of national
policy within the provinces eco-
nomic context and priorities
• National leadership and primary
location for policy determination
• Identify national priorities
• Ensure policy agreed with and
applicable to provinces
• Essential that both levels of
government are involved and agree
national policy
Regulation
• Provide input into national stand-
ards, and share authorisation of
those standards.
• Apply standards in their own
jurisdictions using institutions
with delegated national regulatory
authority.
• Collaborate with national body to
audit compliance and performance
of bodies with delegated regulatory
responsibility.
• National standards developed by
federal body with input from all
stakeholders.
• Application of standards nationally
overseen.
• Delegation of most regulatory
activity to provinces under agreed
conditions.
• Responsible for maintaining
quality and national consistency
through audits in collaboration with
provinces
• Federal and provincial govern-
ments share responsibility for
national standards and cooperate in
regulation.
• Audit role critical and has to be
shared with provinces so problems
are recognised and fixed
Funding
• Determine budget and fund regula-
tory bodies and publicly owned
TVET organisations (e.g. institutes)
within their jurisdiction
• Fund agreed national priorities with
support from federal government,
plus province specific funding of
local priority areas
• Determine budget and fund
national and federal organisations.
Advocacy for increased budget
allocations
• Identify and agree national priori-
ties in conjunction with stakehold-
ers, plus determine budget and
fund national priorities
• Both levels of government fund and
support training.
• Primary support is within own
jurisdiction.
• Federal government supports
national priorities by providing
targeted funding to provinces
Delivery
• Responsible for the application
of standards forTVET both under
national delegation and through
own agencies. Also delivery of train-
ing through own publicly owned
institutes.
• Contract third parties, such as
private training organisations, to
provide training
• Responsible for the direct applica-
tion of standards forTVET in federal
jurisdiction. Also delivery of training
through federal publicly owned
institutes.
• Operation of some services to
support development of national
TVET system.
• There is scope for the develop-
ment of cost-effective national
services to supportTVET develop-
ment throughout the country.These
might include training of trainers;
training of assessors and recogni-
tion of prior learning assessments.

26
Tensions have been created when federal bodies,such as the NationalVocational and Technical
Training Commission,have provided training directly,particularly when the ways in which
this has been implemented have been different to the policies of the provinces. A Technical
Education andVocational Training Authority (TEVTA) will be set-up as a separate entity
in Islamabad to serve the ICT,thus giving all provinces comparable TVET structures.This
Federal TEVTA will be responsible for TVET provision in the Federally Administered Tribal
Areas (FATA) and Gilgit Baltistan as well.
There is an important issue to address in relation to TVET within the Pakistan federation
around the differences between the better resourced and the less developed provinces.This
will require federal support to bring the smaller provinces up to an agreed national level of
performance.
Anationalqualification,assessmentandcertificationsystem
The arguments for a single qualification,assessment and certification system to support skills
development throughout the country are overwhelming.The Pakistan NationalVocational
Qualifications Framework (NVQF) will be established as the core component of a national
integrated TVET system.
The introduction of the NationalVocational Qualifications Framework will address a number
of critical concerns:
• It is the means to provide the standards to define an integrated national TVET system;
• It provides the framework for quality assurance that TVET has lacked;
• Its standards will be reviewed and discussed with foreign authorities responsible for
national qualification frameworks to ensure that Pakistan’s qualifications are recognised
internationally;
• The assessment standards that it will develop will allow people to be tested wherever they
have been trained – by education and training providers in the public and private sectors,
by employers in the work place or in the informal sector;
• It provides a flexible system to support life-long learning.
NationalQualificationFrameworks
Over 100 countries have, or are developing, national qualification frameworks.Their
main purpose is to show what a qualification is, so that individuals can understand
what it is that they have to do to earn one.The framework demonstrates the
relationship of one qualification to another. It consists of a single set of levels,
each used to align a group of qualifications that broadly are equivalent. A national
qualifications framework is:
“Aninstrumentforthedevelopment,classificationandrecognitionofskills,knowledge
andcompetenciesalongacontinuumofagreedlevels.Itisawayofstructuring
existingandnewqualifications,whicharedefinedbylearningoutcomes,i.e.clear
statementsofwhatthelearnermustknoworbeabletodowhetherlearnedina
classroom,on-the-job,orlessformally.TheQualificationsFrameworkindicatesthe
comparabilityofdifferentqualificationsandhowonecanprogressfromonelevel
toanother,withinandacrossoccupationsorindustrialsectors(andevenacross
vocationalandacademicfieldsiftheNQFisdesignedtoincludebothvocationaland
academicqualificationsinasingleframework).”3
3 Tuck, R. An Introductory Guide to National Qualifications Frameworks: Conceptual and Practical Issues for Policy Makers, ILO, Geneva, 2007.

27
The creation of the Pakistan NationalVocational Qualifications Framework will involve a
number of inter-related activities; the principal ones are:
• Defining qualifications,the competences required for an individual to become qualified,
and the level of the qualification.
• Developing standards and processes for the design of qualifications,to include:
- Establishing competence standards – what are the key skills that a person requires to be
able to perform a job? For example,if qualifications are to be designed for electricians,
what are the core skills required to work at a basic level (Level 1) and what are the skills
needed for a supervisor responsible for a team of electricians (Level 3);
- Determining learning outcomes: what a training programme needs to achieve;
- Designing programmes,which may be for a whole qualification or might be designed as
a unit or part of a qualification;
- Defining assessment arrangements: how learners/trainees are to be tested and assessed
to determine if they have achieved the necessary competences.
• Establishing standards for the accreditation of training providers and certification
bodies.Accreditation is the process which gives an organisation the authority to act.The
accreditation of training providers and certification bodies will enable only those with the
facilities,equipment and personnel to undertake these functions and learners/trainees are
given assurance that the training they receive is delivered by a competent and reputable
organisation;
• Developing standards for the accreditation of TVET teachers and trainers;
• Determining standards for assessors;
• Ensuring the equivalency of qualifications with international standards;
• Creating quality assurance standards and procedures to ensure that TVET programmes
and practices conform to performance and audit criteria.
Currently some of these activities are undertaken by a number of different organisations,but
in an uncoordinated manner.This makes for inefficiencies and duplication,and there are no
mechanisms to ensure that minimum standards are maintained throughout the country or
that the interests of learners/trainees are safeguarded.
The establishment and operation of the Pakistan NationalVocational Qualifications
Framework is not,however a centralised function.The standards that are adopted will be
developed by federal and provincial TVET stakeholders and governments.The standards that
are created will have to be implemented and this will require the engagement of a range of
different bodies.For example,the development of qualifications and programmes might be
undertaken by TEVTAs,employer-led groups or by training providers.Assessments will have
to be carried out throughout the country by approved and accredited centres.The difference
between existing and future practice is not that all activities will be centralised,but that the
planning,delivery,assessment and certification of TVET programmes will continue to be
undertaken by a multiplicity of bodies,but these will function within a commonly agreed
national framework,they will be accredited to perform their functions and will be accountable
for their performance and delivery of services.

28
The creation of the Pakistan NationalVocational Qualifications Framework will be a new
initiative that will generate functions,some of which have not been undertaken before in
Pakistan.Its introduction will require a new way of working.The establishment of the National
Vocational Qualifications Framework is a major undertaking that will require a focused and
dedicated approach. It will require the co-operation of Federal and Provincial TVET interests
and the engagement of the private sector.It will demand,also,specialist skills and technical
knowledge of a high order.The determination of standards should be – and be seen to be –
independent of government,if they are to be credible to employers and to learners/trainees.
Preliminary work to develop the vocational qualifications framework has been initiated.This
includes drafting the outline architecture of the NVQF and its functions; more detailed work
on the accreditation of training providers has been completed and consideration is being
given to the qualifications and training of assessors in a competence-based training system.
This work will provide a useful foundation and could be the basis of pilot activities to test the
feasibility of proposed approaches.But much detailed planning must be undertaken.This
includes a nation-wide education and capacity-building exercise to introduce education and
training practitioners and TVET stakeholders,notably employers,to the concepts of the NVQF
and the implications for them of its introduction.
Aninvitationtotheprivatesectortoenterapartnershiptobuildthecountry’sskills
The scale of expansion and reform that is contemplated to guarantee Pakistan the skills
that it requires will not be possible without greater involvement by the private sector.The
implementation of the TVET Policy is not a job for government alone.
An enhanced employer role is required for the following reasons:
• Policy,and the review of its implementation,should involve those who create jobs and who
understand the skills that are required currently and which will be needed in the future.
The generation of future jobs will depend largely on the efforts of employers.They are
best-placed to assess demand;
• There are many ways in which employers can support the reform of TVET.For example,
competency-based training will be realised only if employers are engaged in setting
standards,programme design,the authentication of learning and teaching materials and
assessment processes.Their participation in the management of TVET institutions will
support the adoption of a more rigorous and professional management approach.They are
in a position to develop partnerships with training providers to support the professional
development of teaching and training staff and to offer work experience opportunities to
students/trainees;
• Significant expansion in training programmes and places will depend on an increase in
apprenticeships and employers providing more training opportunities,directly or through
the establishment of new institutions.4
There are examples of the contribution that employers are making to raise the levels of skills
4 There is a major role for non-government organisations to develop training provision as well.This will be encouraged through the proposed National Skills
Fund, which is discussed later.

29
in the country and the emergence of networks to develop new programmes and training
facilities.But this activity and engagement needs to be taken to a higher level,to
• Encourage and support employers to undertake more training directly,including
providing apprenticeships on a scale comparable to competitor countries;
• Incentivise and promote the establishment of more private-sector,employer-led training
centres and facilities;
• Facilitate the involvement of employers in the reform and management of publicly-funded
TVET provision.
ArgumentsforgreateremployerengagementinTVET
• It is in the business interests of employers to invest in their own workers and their
families and that improvements in productivity and quality will add to the‘bottom
line’and increase profitability;
• Employers have a vested interest in ensuring that congenial conditions for business
and economic growth are developed and maintained. Investment and business
growth are not stimulated in societies which lack cohesiveness and where there are
risks of civil disturbance. It is worthwhile for the private sector to try to defuse the
‘demographic time-bomb’, for example, and help to provide positive opportunities
for young people;
• The private sector has the skills and knowledge to‘make a difference’and to inject
energy and experience, both to generate new training opportunities and to support
the reform of publicTVET provision;
• There is a moral justification for enterprises to demonstrate corporate social
responsibility and to contribute to economic and social growth beyond their
immediate business concerns.
The Government believes that there is a series of practical measures that can be taken to
encourage employers to join a national effort to strengthen Pakistan’s skills.These are:
• To create an enabling environment: a‘carrot and stick’approach has characterised
the ways in which successive governments have sought to engage the private sector in
training.The Apprenticeship Ordinance,for example,requires enterprises of a certain
size to provide apprenticeships,with tax and excise concessions available to them.The
Government accepts that an approach based on coercion,mitigated by incentives,has not
worked.It is not the most appropriate way to encourage employers to develop training
opportunities.The Government is committed to the introduction of a more enabling
environment and invites employer representative organisations to join discussions about
how a new working relationship can be developed.
• To develop a more supportive framework: the range of potential demands on employers
to contribute to skills development is broad.It is clear that not all employers are yet
convinced of the benefits of investing in training.The Government believes that employers’
representative organisations and associations could play a role in assisting employers to
provide training and to become involved in different aspects of skills development (for
example,in determining occupational standards or membership of the governing board
of a TVET institution).Employers’organisations may not as yet have the capacity to
undertake this advisory and supportive work and they may require additional resources
and technical assistance to undertake this new role.The Government will explore with
employers’representative bodies the scope for providing additional support to them,
including access to international technical assistance.
• To review the scope for financial incentives: for many years,tax and excise relief has

30
been available to employers who provide apprenticeships and who purchase training
equipment.These provisions are little used,however,in part because they are not
widely known about and bureaucratic procedures deter the submission of claims.The
Government accepts that incentives may be required to promote and expand training,and
that the private sector should be able to access public funds that are available for training.
These are significant issues that the Government wishes to explore further with employers.
• To guarantee an employer role: there are many skills development activities that will
benefit from employer involvement.As discussed already,these include the determination
of standards,the design of training programmes and the management of TVET
institutions.The Government will include in new,comprehensive skills development
legislation,the statutory right of employers,and other stakeholders,to be partners in
decision-making and in the oversight of national and provincial TVET policy and its
implementation.The legislation will include provision for the creation of the Pakistan
Skills Partnership to institutionalise the partnership at national level,and this is discussed
further below.
Continuingandacceleratingreform
The reforms proposed in the National Skills Strategy (2009) will be continued and accelerated
and the various interventions and initiatives that it sets out will be implemented by no later
than 2020.The analysis and proposals set out in the National Skills Strategy have informed
the preparation of this TVET Policy.The annual planning system introduced by the TEVTAs
and NAVTTC is based on the objectives of the National Skills Strategy.Perhaps unsurprisingly
there are marked variations across the provinces in achieving objectives due to the disparity
of resources available to them.There is no formal mechanism,for reviewing performance
collectively or for the exchange of good practice and experience.
The Task Force established to develop the TVET Policy will be given the role to monitor the
implementation of the National Skills Strategy in the immediate future.
Collaborationacrossallgovernmentsectors
Skills development is not a discrete and isolated policy area.Investment in training must
contribute to the achievement of economic and social policy goals.The introduction of a
national standards-based TVET system and competence-based training should include all
skills development activities funded and supported by government departments.
This means that:
• Mechanisms will be established to determine the skills that will be needed to implement
economic,social and infrastructure strategies to inform the design of training
programmes to be offered by public and private training providers;
• Information dissemination and capacity-building will be required in government
ministries and agencies,to inform and support those responsible for the design and
commissioning of training,to understand the NationalVocational Qualifications
Framework and its implications for their work.
The Ministry of Federal Education and Professional Training will take the lead in developing
dialogue and collaboration between Ministries and Government Agencies.

31
TVETandGeneralEducation
Education strategies have argued for the greater inclusion of technical and vocational
education in general school curricula.There is experience on which to build that suggests that
the successful introduction of TVET in schools demands suitably qualified teachers,sufficient
resources for the acquisition of equipment and materials and curricula that are relevant locally.
Two broad approaches are possible.The first concerns curricula that are concerned with
introducing learners to the‘world of work’,including information about jobs,guidance,‘taster’
activities and introduction to basic techniques (for example,use of hand tools,maintenance).
Such activities are concerned essentially with exposing learners to potential areas for further
learning.The second is training oriented,designed to provide marketable skills and to
encourage self-employment.
The Ministry of Federal Education and Professional Training will initiate a pilot programme
to establish Technical High Schools.This will test the feasibility of developing such institutions
and provide experience and evidence on which to plan a national initiative.The introduction
of the pilots will provide the opportunity for public-private partnerships to establish Technical
High Schools.
GovernanceandInstitutionalStructuresofTVET
The following principles have been adopted in reviewing the governance and legal structures
that are required to bring about the systemic changes that are needed to increase training
provision on a massive scale,whilst raising the quality of programmes and outcomes.These
are:
• Clarity about roles and responsibilities: there are public TVET organisations with
similar and over-lapping functions currently and any doubts or ambiguity as to who is
responsible for what must be eliminated.Successful TVET should be based on the creation
of communities of trust and partnerships,and these are dependent on organisations
understanding what is expected of them.However carefully functions may be defined,
there are likely to be‘grey areas’where formal responsibilities have not been defined fully.
Only discussion will resolve such issues and this needs to be based on mutual trust and
respect,qualities that still need to be built,especially in the public TVET sector;
• Accountable institutions and people: institutions and individuals are responsible for
the use of funds and other resources and for meeting operational targets and goals.This
means that the relationships between organisations and their lines of reporting must be
clear and transparent;
• Autonomy and devolution: decisions,especially operational ones,need to be made
closest to where implementation happens.The TVET system is still relatively immature
and capacity and systems need to be built before delegation and a complete network of
autonomous TVET institutions can be created,but the goal should be clear;
• Synergy and collaboration: the challenge of expanding TVET provision and raising its
quality will provide sufficient work to consume the energies and talents of all existing
education and training organisations,but structures and systems are required to foster
greater collaborative working;

32
• Avoiding conflicts of interest: functions need to be separated to avoid conflicts of
interest.Thus,for example,the setting of standards should not be confused with the
delivery of training; assessment and certification are functions that are linked to,but
distinct from,the provision of training.These different accountabilities have become
blurred and need to be differentiated clearly.
ANewTVETLandscape
The implementation of the national TVET Policy will require the development of new
functions,the recruitment of high-level technical,managerial and professional skills and
institutional arrangements that will secure the engagement of the private sector.It will
require fit-for-purpose organisations that are focused on the execution of clear mandates.
The institutional landscape will change,with revised functions for existing bodies and the
creation of two new bodies.Annex 5 shows the new landscape and the inter-relationship of
organisations.
The Ministry of Federal Education and Professional Training will continue to be
responsible for the development of national policy,the drafting of legislation and budgetary
submissions and financial allocations.It will be supported by a reorganised National
Vocational and Technical Training Commission (NAVTTC).This will be a policy and
regulatory body that will oversee the implementation of policy,provide technical advice and
support to the Ministry and will review the need for legislative or regulatory amendments.Its
core task will be to monitor and review TVET developments from a national perspective to
ensure that the skills needs of the country as a whole are identified and are provided.NAVTTC
will be restructured to enable it to fulfil this new role.
In order to develop and implement the NationalVocational Qualifications Framework,
an independent Pakistan NationalVocational Qualifications and QualityAssurance
Organisation will be established.This will not be a large,bureaucratic body,but a focused
and specialist organisation.Its precise legal form has still to be decided,but it will probably
be a Section 42 Company (Companies Act 1984). It will be governed by a board of directors,
the majority of whom will represent employers. It will be able to establish its own terms and
conditions for the employment of staff,so that it can attract and retain people with appropriate
levels of knowledge and experience.
KeyfunctionsofthePakistanNationalVocationalQualificationsand
QualityAssuranceOrganisation
• Management of the NationalVocational Qualifications Framework, including
guidance for developing qualifications, their recognition and registration and record
keeping for current qualifications;
• Support for the operation of theTVET system in specialist areas within the
Qualifications Framework, such as Recognition of Prior Learning (RPL) and Credit
Transfer;
• Development and oversight of the assessment processes, emphasising the integrity
of outcomes achieved;
• Development and oversight of the certification system – the awarding of
qualifications;
• Establishment of criteria and requirements for assessors to undertake competence-
based assessments;

33
• Management of quality assurance forTVET components and products: many
products, such as competence-standards, will be developed externally, but
ensuring that due processes have been followed will be the responsibility of those
maintaining the NationalVocational Qualifications Framework;
• Oversight of quality assurance of organisations that train and assess students/
trainees, including accreditation of providers and training programmes;
• Delegation of roles in relation to quality assurance; many aspects of this work will
be decentralised, particularly to provinces;
• Development of technical policy;
• Establishment of international equivalences of qualifications and enhancing the
acceptance of Pakistani qualifications overseas;
• Liaison with international organisations responsible for National Qualifications
Frameworks and regional bodies developing cross-national frameworks, such as
ASEAN and the European Commission (European Qualifications Framework).
It will take time to establish formally the PNVQ & QA organisation,but developmental
work will continue under the auspices of the NationalVocational and Technical Training
Commission (NAVTTTC).The Government will provide funds to enable this important
initiative to proceed and it will seek international donor assistance and technical support to
help drive and sustain this work.
The agenda for this proposed new body is daunting in both its scale and ambition.It will have
to seek to change attitudes and practices,especially in such areas as assessment and building
links with the informal sector.International experience suggests that it will take time to
establish such a body and to educate TVET practitioners and stakeholders about is purposes
and functions.
In such a large and diverse country as Pakistan,it would be impossible for such an
organisation to carry out all of its functions directly.It will need partners and the authority
to delegate functions,particularly to the provinces.These will include,but not be limited to,
the design of qualifications,accreditation of training providers and assessment of learners/
trainees.
The Government will legislate to establish the Pakistan Skills Partnership.This will be a
stakeholder,employer-led body.The rationale for its establishment can be stated simply:
• The engagement of the private sector,which is necessary for the development of skills in
Pakistan,is institutionalised and given formal,public expression;
• It is a practical demonstration that the Government is committed to a partnership
approach;
• Current organisational arrangements have failed to provide a strategic focus and national
profile for skills development.
The functions of the Pakistan Skills Partnership will be to:
• Advise government on skills policy,priority sectors for intervention and labour market
needs - this would include the development and maintenance of the National Skills
Information System;
• Oversee the implementation of the National Skills Strategy (NSS) and integration with
economic and social development policies and initiatives;
• Investigate funding options for TVET and undertake research into key areas for
development;

34
• Bring employers and TVET institutions together,including through formal bodies such as
Sector Skills Councils or Skills Development Councils;
• Support and enhance apprenticeships;
• Development of human resources in the TVET sector;
• Promote skills development as a route to jobs,further education and training and self-
employment and its investment benefits to employers;
• Administer the National Skills Fund; (see below)
• Support active labour market initiatives;
• Develop and support national performance monitoring of TVET,in conjunction with
federal and provincial governments.
The Pakistan Skills Partnership Board will represent federal and provincial interests and the
principal economic sectors,with the majority of members drawn from the private sector.It is
not envisaged that the Pakistan Skills Partnership will require a large staff,since it is expected
that it will achieve many of its objectives through topical working groups,many technical
in nature,with expertise drawn from national and provincial government departments and
agencies,the private sector and education and training professionals.
Although current legislation requires the majority of TEVTAs to co-operate with NAVTTC
there is no formal mechanism to encourage and support a national dialogue on skills
development issues. Interaction between national and provincial concerns,with stakeholders
and social partners about skills development should be encouraged.The Pakistan Skills
Partnership will fulfil this role.
The creation of the Pakistan Skills Partnership will have implications for the revitalised
National Training Board/Bureau.This will continue to have a major role and its precise
functions will be determined by the Ministry.
No specific proposals are made about provincial structures,other that in relation to Islamabad.
The significant structural changes that we are proposing have consequences for the TEVTAs.
Provincial administrations will have the opportunity to review their current arrangements for
the oversight and management of TVET and skills issues,and it is hoped that any legislative
changes that they may wish to introduce will be harmonised with the drafting of national
legislation.One key issue that provincial TEVTAs will need to address is how the standards
of the TVET sector,and in particular the operation of the Pakistan NationalVocational
Qualifications Framework,will apply across the skills development/TVET institutions and the
training programmes of all ministries.The answer may differ between provinces,but the role
of TVETAs to promote standards and coordinate training should be part of the considerations.
FundingandFinance
Perhaps the single most important factor that will contribute to the building of skills is to
secure adequate and sustained funding so that medium-term initiatives can be embarked
upon with confidence.The current funding regime is characterised by short-termism and
a lack of certainty over the amounts and timing of transfer payments,particularly to fund
development and innovation.Public investment in TVET is low,recurrent expenditure is

35
historically based and spent largely on wage costs.Within individual training institutions there
is scope for savings if low occupancy levels are addressed and there should be opportunities
for rationalizing management structures.At both national and provincial levels there are
opportunities for reviewing the functions of existing bodies to explore possibilities for mergers
or abolition.
It would be naïve to suggest that proposing the allocation of additional resources to TVET by
government is an easy decision,given the competing demands that the National and Provincial
Governments face,but the case is persuasive,given the challenges to be addressed and the
return on the investment – assessed in terms of increased productivity and competitiveness,
growing remittances,lower poverty levels and greater social cohesion.A clear commitment
by Government to the priority status of TVET is likely to leverage donor and international
support.
The scope for generating additional income within the TVET sector is limited.In addition
to economies that might be made,income could be increased by requiring learners/trainers
to pay realistic fees,with provisions to cater for poor and vulnerable groups; encouraging
training providers to set up production units (e.g.a training centre that offers carpentry
programmes might manufacture furniture for sale; a hospitality programme might run a
restaurant).There are arguments for and against each potential revenue stream.Using fees as a
more direct way to fund TVET may run counter to constitutional provisions for free education,
but with adequate safeguards charging for TVET might make learners/trainees appreciate
the experience more,and fees are a feature of the system already.The benefits of production
units lie not just in the money they might generate; they provide practical work experience,
contact with customers and opportunities for learners/trainees to have‘hands-on’experience
of running a business.They can also be a distraction and divert training institutes from their
principal purpose.However,entrepreneurship should be encouraged,and where feasible such
units should be supported,but they are marginal in terms of generating additional funds.
In the medium term,there are prospects of additional funds,particularly from assessments
and trade tests if the NVQF is launched successfully.This particularly applies to people seeking
certification of skills to help them access the overseas labour market.
International arrangements and trends in the funding and financing of TVET have been
reviewed.These include sharing responsibilities between governments,employers and
learners/trainees on the principle that the main beneficiaries of training should contribute
to costs.Cost sharing involves charging realistic fees to be paid by learners/trainees,
usually with loan or bursary arrangements to assist poorer people and so encourage access.
Employer incentives include levy and grant schemes.International trends include innovative
funding regimes for training providers,including incentive schemes to encourage improved
performance and competitive tendering for training provision to encourage the growth of a
TVET-market as a strategy to improve performance.

36
The necessary conditions,however,do not exist for major innovations in TVET funding and
finance in the short-term,for the following reasons:
• The tax collection system is not sufficiently robust to operate a training levy system that is
based on payroll,contract values or other criteria.Its introduction would require detailed
planning,both to operate a levy system and to tackle issues of non-compliance,policing
and monitoring.To be successful,a training levy should have the support and cooperation
of employers and the necessary groundwork and discussion will take time.At present the
introduction of a training levy would be seen as simply a punitive tax; given the history
of levies in the country it would be viewed with suspicion and would fail to provide the
incentives to encourage employers to invest in TVET;
• Whilst there is accounting expertise in the public TVET sector,there is not enough in-
depth financial management capability to administer sophisticated or complex funding
regimes.The development of TVET Management Information Systems is underway
but these need to be completed,along with additional capacity building in financial
management and monitoring and evaluation processes before a performance-based
funding system can be introduced;
• Radical changes to the fee arrangements in public TVET institutions and centres would
require sensitive political preparation and should not be contemplated without the
establishment of a loan and bursary system.
The design and implementation of a sustainable funding regime for TVET remains a priority,
and there is much international experience on which to draw.The proposed Pakistan Skills
Partnership will be charged to develop options for future funding,to reflect the following
principles:
• Finance and funding arrangements to include incentives and penalties to encourage
training providers to deliver programmes more efficiently,by maximising outputs and
controlling unit costs,and which accord with economic priorities and objectives;
• Funding should enable students/trainees from different backgrounds to access training
opportunities equally;
• Funding to be adequate to enable the TVET policy to be implemented and sustainable to
support continuous improvements in quality provision;
• Publicly provided TVET funds should be available to both public and private training
providers on a competitive basis,with annual increases in the proportion of funds
allocated on a competitive basis.
In order to promote skills development and demonstrate its commitment to TVET,the
Government will:
• Introduce a separate,earmarked three-year budget for TVET.Funds for TVET have
been part of the allocations made to education and other ministries and have not been
identified separately.A defined medium-term TVET budget will show the importance
attached to training; will enable more accurate allocations and expenditure reviews and
should contribute to greater certainty in planning.
• Commit to increasing allocations to TVET from 2015 and in each of the succeeding three
years,provided that progress in implementing reforms can be demonstrated;
• Establish a National Skills Fund in 2015,open to bids from any legal entity,to encourage

37
innovative training practices to increase the numbers of people with mid-level skills.Work
will begin immediately to determine how the National Skills Fund will function and how
bids will be made and assessed.The basis for allocations will be performance-based and
payments will be linked to actual achievements.(Annex 6 describes the proposed fund in
more detail).
These are significant innovations and demonstrate in a practical way the Government’s
intention to give skills development greater priority.
Anewlegislativeframework
The Government will introduce comprehensive skills development legislation.This will give
effect to the TVET Policy,define and clarify the functions of organisations and address existing
anomalies and duplication in current legal instruments.A joint federal-provincial Task Team
will prepare detailed proposals.This arrangement will ensure a national approach to skills
development and will provide opportunities for provincial governments to review their TVET
organisation in the light of national developments.Annex 7 outlines the possible scope of this
legislation.

38
TheImplementationPlan
The full implementation of the National TVET Policy will take many years to achieve.This
Implementation Plan covers in broad terms the necessary activities for the next three years.
Key activities are described with indicative timing,plus the organisations involved,targets/
milestones and the issues that will need to be considered in implementation.
Activities are grouped under five broad headings indicating different aspects of
implementation.These are:
• Launch and introduction of the National TVET Policy – the initial activities to get
implementation started – roughly running until 30 June 2015
• Development of institutional and legislative arrangements – sorting the roles and
mandates of organisations and updating legislation and regulation to support
implementation – roughly running to 31 December 2015,although some legislation may
take longer
• Implementation of activities from Policy commenced and operational – getting key
activities underway,including through interim arrangements – roughly running until 31
December 2015
• Undertaking priority activities in the Policy – the activities necessary to make TVET
Policy operational are in place and working – roughly running until 31 December 2016
• Enhancing implementation of the Policy,including monitoring and evaluation – activities
continue,but feedback is used to improve and redirect the process – roughly running until
31 December 2017
LaunchandintroductionoftheNationalTVETPolicy–to30June2015
Key Activities Timing Organisations involved Outcomes &Targets Issues
Initial national
announcement
Feb 2015 Ministry5
, NAVTTC6
, PMs
office
Initial announcement to
national audience
Coordination with other
areas
Suitable outline
introductory material
ImplementationTeam
established to coordinate
government activity
March 2015 Ministry, NAVTTC Establish coordination
point for policy in or
underauspicesofMinistry
Provides support to
implementation by
coordinating government
activity
5 Ministry refers to Ministry of Federal Education and ProfessionalTrainings
6 NationalVocational andTechnicalTraining Commission

39
Key Activities Timing Organisations involved Outcomes &Targets Issues
Coordination workshop March 2015 Ministry, NAVTTC and
TRSP7
Establish donor roles and
extent of support desired
and available
TRSP has been donor
supported programme
assisting development
and implementation of
Policy
Distribution of copies of
NationalTVET Policy
March – April 2015 Ministry, NAVTTC and
TRSP
To all major stakeholders May also need a separate
Urdu introduction/
summary
NationalTVET Policy
Implementation Group
established
TRSP
Steering group of
stakeholders for
implementation is in
place
This is a revamp of the
Task Force that developed
the Policy
Briefing session for
private sector, including
employer and employee
organisations
TRSP
Introduce Policy to private
sector and particularly
start discussion on
implementation of
private sector role in skills
development andTVET
sector
Conference and briefing
sessions for international
donors
TRSP
Review progress ofTVET
reform and introduce
Policy to all major donors
inTVET sector
This will also enable
coordination of donor
activities and forward
planning of donor
projects
NationalTVET Policy
conference
April 2015 NAVTTC,TRSP with
provincialTEVTAs
and private sector
organisations
Introduce National Policy
and implementation
process to all major
stakeholders
Support material needed
Location Islamabad
Introduction and initial
planning sessions
Late April – end May
2015
NAVTTC,TRSP, provincial
and regionalTEVTAs
Introduce National Policy
and implementation
process to all major
stakeholders in each
province
Begin planning process
for implementation in
each province and region
Support material needed
Link to plans and
priorities in each province
and region
Will need to link to
budget cycle for 2015
- 2016
7 TVET Reform Support Programme – donor funded programme forTVET in Pakistan managed by GIZ (German Develop-
ment Agency)

National TVET Policy 2015

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